I was surprised and intrigued to hear reports of Russian use of ballistic missiles against targets in Georgia. Given the array of weapon systems and technology at the disposal of Russian battlefield commanders, it seemed an odd choice of tool for the job at hand…unless, of course, the job at hand is something other than the destruction of assorted ground targets in Georgia. More on that later.

Details are still sketchy, but I’ve read at least two reports indicating that the missiles in question were of the SS-21 variety, pictured above. As you can see, they’re a mobile, short-range system, with a minimum range of 15 km and a maximum range of about 70 km. They weigh about 2000 kilograms (4,409 lbs) and carry a warhead of 482 kg (1,062 lbs). Depending on whether it’s an A or a B model, the SS-21 can be loaded with a number of warhead options, from HE, to chemical, to EMP, to anti-runway and anti-personnel submunitions, and, of course, nuclear devices in either the 10 or 100 kiloton variety. The A model is said to be accurate to within 150 meters or so, and the B model is supposed to be accurate to around 100 meters.
What makes the SS-21 and like systems such an odd choice of weapon for, say, blowing up parts of Gori, is that, unless you’re using the missile’s less conventional warhead options–nuclear, or chemical, for example, or EMP–it’s a pretty inefficient way to deliver a payload to a target. A single Su-25 Frogfoot attack aircraft, for example, carries over eight times the explosive weight of an SS-21. Moreover, the Su-25 can be diverted mid sortie to attack targets of opportunity, and, with a human pilot, can discriminate between and prioritize targets on the ground in a way that the SS-21 cannot. Additionally, while I have no idea what an SS-21 costs, I know they are not cheap–and much more expensive, per pound of explosive power delivered than an aircraft sortie.
So why use the SS-21? I’ve heard it suggested that, as Georgian air defenses had shot down several Russian aircraft (last count I saw had the Georgians claiming 10 and the Russians acknowledging 2), the use of ballistic missiles came about as a means of striking targets without exposing aircraft and pilots to Georgian air defenses. This explanation doesn’t ring true with me, however. In light of the level of resources the Russians have committed to the conflict, it seems unlikely that they’d give sacrifice as valuable tactical tool as their ground-attack air assets over 10 lost aircraft–assuming for the sake of argument that Georgian figures are correct. Furthermore, I’ve not seen any evidence to suggest that the Russians have discontinued their air attacks in favor of ballistic missile strikes–only that they’ve engaged in missile strikes as well.
It seems more likely to me that Russian use of ballistic missiles has very little to do with destroying targets in Georgia or not exposing air assets to the perils of combat. Rather, I submit that it has everything to do with sending a message. It seems likely to me that Russia, like Georgia, expected Western/NATO intervention and, with that in mind, wanted western leaders considering such intervention to have Russian ballistic missiles on their mind. Not only are ballistic missiles a cold-war boogeyman that such leaders would be familiar with, they also pose unique threats to western forces. Even if the U.S. missile shield were operational, it wouldn’t cover Georgia, and would deal with such short-range threats as the SS-21 with great difficulty. So for all intents and purposes, the SS-21 cannot be shot down–and can deliver a variety of warheads (even with the nuclear option of the table, which it certainly is) within 150 meters of the forces of western intervention–is it really worth it to the U.S. or a European state to intervene in Georgia if it means having a naval vessel, or group of same, utterly disabled by an EMP? Maybe, but that possibility makes the decision to intervene a weightier one.
I argue that Russian use of ballistic missiles is meant as a warning flag to potential interventionists–an attempt to call to mind a threat that, if not sufficient to deter intervention altogether, might at least delay it until Russian objectives on the ground can be met.
Am I wrong? What do you think?
Grayden Ridd